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September*  1916 


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hrough  surveys 


BY 


SHELBY  M.  HARRISON 


DIRECTOR.  DEPARTMENT  OF  SURVEYS  AND  EXHIBITS. 
RUSSELL  SAGE  FOUNDATION 


PAPER  PRESENTED  IN  PART  AT  THE  INDIANAPOLIS  MEETING  OF  THE  NATIONAL 
CONFERENCE  OF  CHARITIES  AND  CORRECTION,  MAY.  1916 


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Department  of  Surveys  and  Exhibits 
Russell  Sage  Foundation 
East  TwENTYrSECOND  Street,  New  York  City 


Cents 


GIFT   OF 


Digitized  by  the  Internet  Archive 

in  2007  with  funding  from 

Microsoft  Corporation 


http://www.archive.org/details/communityactiontOOharrrich 


SE23  September,  1916 

COMMUNITY   ACTION 
THROUGH    SURVEYS 


BY 

SHELBY  M.  HARRISON 


DIRECTOR.  DEPARTMENT  OF  SURVEYS  AND  EXHIBITS. 
RUSSELL  SAGE  FOUNDATION 


PAPER  PRESENTED  IN  PART  AT  THE  INDIANAPOLIS  MEETING  OF  THE  NATIONAL 
CONFERENCE  OF  CHARITIES  AND  CORRECTION.  MAY.  1916 


Department  of  Surveys  and  Exhibits 

Russell  Sage  FouNDAriON 

130  East  Twenty-Second  Street,  New  York  City 


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COMMUNITY  ACTION  THROUGH  SURVEYS 

Outline  of  Topics 

The  Survey  Resolved  into  its  More  Important  Parts 
Investigating  the  Facts 
Analysis  and  Interpretation 
Constructive  Recommendations 
Presentation  of  Survey  Findings  to  the  Public 
A  Community  Undertaking 
Follow-up  Work 

A  Brief  Definition 

An  Illustrative  Survey :  The  Springfield  Survey 

Purpose :  To  Give  Local  Opinions  and  PoHcies  the  Test 

of  Fact 
A  Co-operative  Community  Effort 
Educational  Use  of  the  Survey  Findings 
Springfield  as  a  Typical  City 

Results  from  Surveys 

Community  Education  and  Awakening 
Specific  Accomplishments 

Developments  in  Springfield 

Developments  in  Topeka 

The  Survey  as  a  Civic  Renewal  Process 

Changed  Conditions  Calling  for  Action 

Spread  of  the  Social  Survey  as  a  Form  of  Action 


VY 


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COMMUNITY  ACTION  THROUGH  SURVEYS 

In  referring  to  the  death  of  the  editor  of  the  Kansas  City  Star 
a  few  months  ago,  the  New  York  Evening  Post  made  several 
interesting  comments.     A  paragraph  ran  as  follows: 

"The  civic  advance  made  by  Kansas  City  in  the  last  thirty  years  has  been 
brought  to  general  attention  by  the  death  of  WilKam  R.  Nelson,  but  it  is 
worth  holding  up  to  other  municipalities  in  any  connection.  In  1880,  we 
learn  from  the  Missouri  press,  Kansas  City  lay  among  the  hills  and  hollows 
of  the  Missouri  River, '  content  with  its  strategic  importance,  its  mud,  its 
filth,  and  its  packing  houses.'  The  little  group  of  pubHc-spirited  men  whom 
Col.  Nelson  represented  accompHshed  what  they  did  by  holding  an  unmerci- 
ful mirror  before  the  town.  They  described  the  defects  of  the  streets,  the 
untidiness  of  the  business  and  residence  sections,  the  wretched  service  of 
the  street-car  system,  the  excessiveness  of  the  gas  and  water  charges,  the 
need  for  parks  and  boulevards.  The  Union  Station  swarming  with  vermin, 
and  the  unsightly  thickets  of  telephone  and  telegraph  wires  that  ran  above 
the  ground  were  especial  objects  of  attack. 

"This  candor  had  its  effect  in  making  aesthetic  progress  a  consistent  part 
of  commercial  and  physical  growth.  Kansas  City  has  today  a  chain  of 
public  parks  that  would  be  creditable  to  a  city  four  times  its  size,  its  boule- 
vards are  models  in  construction  and  design,  and  it  has  utiHzed  to  the  full 
the  scenic  possibiUties  of  its  location  upon  the  bluffs.  And  the  Union  Sta- 
tion is  among  the  four  best  architectural  works  of  the  kind  in  America." 

Colonel  Nelson's  type  of  newspaper  represents  a  social  force 
illustrative  of,  and  akin  to,  the  social  or  community  survey. 
Both  are  concerned  with  the  practical,  every-day  issues  of  com- 
munity life;  both  inquire  into  them,  analyze  what  they  find, 
formulate  proposed  courses  of  action,  and  seek  wide  currency  for 
their  data  and  proposals.  In  other  words,  both  this  type  of 
newspaper  and  the  survey  gather  facts,  digest  and  interpret  them, 

3 


389218 


COMMUNITY  ACTION   THROUGH   SURVEYS 

and  seek  to  reach  the  whole  pubhc  with  their  information,  con- 
clusions, and  recommendations. 

At  the  same  time,  there  are  differences  between  the  two — some 
of  them  at  the  very  points  of  similarity — which  are  also  illus- 
trative and  suggestive.  The  survey,  for  example,  collects  its 
data  through  the  agency  of  the  investigator  who,  in  addition  to 
having  a  "nose  for  news"  and  an  eye  for  facts,  as  the  reporter 
has,  is  a  specialist  on  social  and  community  problems,  trained 
in  the  handling  of  material  on  these  subjects.  He  knows  better 
than  the  reporter  what  data  to  look  for,  better  how  to  collect 
and  collate  them. 

An  essential  characteristic  of  the  survey,  moreover,  is  the  care- 
ful and  thorough  study  and  evaluation  of  the  many  important 
elements  of  a  situation  before  reaching  a  conclusion,  whereas  the 
newspaper  often  finds  it  necessary,  partly  because  of  the  exigencies 
of  daily  publication,  to  handle  questions  piecemeal  and  in  haste. 
Further,  the  reporter,  when  his  story  is  ready,  has  but  one  avenue 
to  the  ear  of  the  pubHc,  his  newspaper  columns;  while  the  sur- 
veyor, besides  having  the  same  newspaper  columns  open  to  him, 
may  use  many  other  means  of  spreading  his  information — among 
them  the  summarizing  leaflet,  the  public  address,  the  graphic 
exhibit,  the  educational  play,  the  magazine  and  periodical  press, 
and  finally  the  full  report  in  pamphlet  or  book. 

But  whatever  their  relative  advantages,  the  comparison  helps 
to  describe  the  survey  idea  and  to  resolve  it  into  some  of  its  more 
important  parts.  Among  these,  as  already  suggested,  are  the 
investigation,  the  analysis  and  interpretation  of  facts  gathered, 
the  formulating  of  constructive  recommendations,  and  the  edu- 
cational use  of  the  facts  and  proposals  with  a  view  to  providing  a 
solid  basis  for  intelligent  community  action.  Let  us  look  further 
at  these. 

Investigating  the  Facts 
First,  then,  investigation — the  securing  of  facts  regarding  com- 
munity problems.     Fact  gathering  is  the  A  B  C  of  surveys.     But 

4 


COMMUNITY   ACTION   THROUGH   SURVEYS 

it  is  the  facts  of  current  problems  and  living  conditions,  not  data 
that  are  remote  or  necessarily  concerned  with  the  historical  past, 
except  as  they  cast  light  on  the  present,  with  which  the  survey 
deals.  The  survey  is  an  attempt  in  the  field  of  civic  and  social 
reform  to  do  what  the  civil  engineer  does  before  he  starts  to  lay 
out  a  railroad,  what  the  sanitarian  does  before  he  starts  a  cam- 
paign against  malaria,  what  the  scientific  physician  does  before 
he  treats  a  case,  what  the  careful  financier  does  before  he  develops 
a  mining  property,  what  the  modern  manufacturer  does  before 
he  locates  a  new  manufacturing  plant.  It  is,  in  short,  an  attempt 
to  substitute  tested  information  for  conjecture  or  mere  belief. 

Unconfirmed  belief  has  sometimes  been  a  very  unreliable  and 
socially  expensive  guide  to  action.  It  was  once  believed,  for 
example  (and  not  so  long  ago),  that  fumigation  was  one  of  our 
main  reliances  in  preventing  the  spread  of  contagious  disease; 
now  a  fuller  understanding  of  the  manner  in  which  infection  is 
spread  and  careful  tabulations  of  statistics  show  the  emphasis 
belongs  on  much  more  important  preventive  measures.  Again, 
it  was  once  believed  that  spring  water  was  always  safe  for  drink- 
ing, purposes ;  but  facts  collected  regarding  such  water  and  in- 
vestigation of  the  condition  of  people  who  drink  it  have  shown 
that  it  is  very  often  dangerous  and  usually  to  be  regarded  with 
suspicion.  Still  again,  it  was  once  believed  that  the  vast  ma- 
jority of  injuries  to  workmen  while  at  work  were  pure  accidents 
and  unavoidable,  and  that  it  was  of  little  use  to  try  to  prevent 
them ;  but  now  we  have  the  data  to  show  that  a  very  large  pro- 
portion are  by  no  means  purely  accidental  and  unavoidable, 
and  it  has  been  demonstrated  that  their  occurrence  can  be  greatly 
reduced.  And  so  on — illustrative  instances  might  be  drawn 
from  many  quarters. 

On  the  other  hand,  it  is  true  that  many  beliefs  and  opinions 
have  ultimately  found  justification  in  facts.  And  many  others 
have  contained  half  truths  of  value.  It  was  J.  A.  Froude  who 
once  said,  "Depend  upon  it,  in  all  long  established  practices  or 
spiritual  formulas  there  has  been  some  living  truth."     Thus, 


COMMUNITY  ACTION   THROUGH   SURVEYS 

for  example,  the  belief  once  held  that  malaria  was  produced  by 
stagnant  water  and  by  swampy  districts,  has  turned  out  to  con- 
tain a  half  truth,  although  never  of  much  preventive  significance. 
But  even  these  beliefs  and  half  truths,  although  they  at  times  may 
have  served  good  purposes,  really  support  our  point,  since  they 
leap  into  great  practical  usefulness  upon  being  proved.  At  best, 
untested  belief,  a  priori  theory,  or  conjecture  are  uncertain  foun- 
dations upon  which  to  build,  whether  in  social  work,  industry, 
commerce,  or  finance.  They  should  be  replaced  as  soon  as  suffi- 
cient data  can  be  made  available. 


Analysis  and  Interpretation 
The  second  survey  characteristic  is  analysis  and  interpretation 
of  facts.  Once  the  data  are  in  hand,  what  do  they  mean?  Do 
they  show  satisfactory  conditions  or  conditions  calling  for  cor- 
rective action?  If  it  is  found,  for  example,  that  25  per  cent  of 
the  elementary  school  pupils  of  a  city  are  over-age,  that  is,  two 
or  more  years  behind  the  grade  in  which  children  of  their  ages 
would  ordinarily  be  found,  does  it  mean  that  they  are  badly 
taught,  or  that  the  city  has  a  defective  educational  system?  Or 
should  other  data  be  related  to  this  fact  before  any  conclusion 
can  be  drawn — such  as  whether  unfavorable  home  and  family 
conditions,  ill  health,  ill-adapted  courses  of  study,  foreign  birth 
and  recent  immigration,  or  badly  enforced  school  attendance, 
enter  into  the  backwardness  of  this  over-age  group.  And  before 
condemning  the  city,  should  an  examination  be  made  of  the  per 
cent  of  over-age  pupils  in  the  schools  of  other  comparable  cities? 
Or,  to  take  another  example,  if  it  is  found  in  a  given  city  that 
5,000  persons,  or  let  us  say  18  in  every  1,000  of  the  population, 
died  in  a  certain  year,  what,  if  anything,  does  this  mean?  Is  it 
either  fair  or  significant  to  compare  this  crude  death  rate  with 
those  of  other  cities?  Or  is  it  more  important  to  relate  other 
facts  to  these  death  figures,  such  as  the  number  of  deaths  of  non- 
residents included  in  the  total ;  the  ages  at  which  the  bulk  of  the 

6 


COMMUNITY  ACTION   THROUGH   SURVEYS 

population  is  grouped ;  the  division  of  the  deaths  between  the 
sexes,  races,  and  nationalities;  their  classification  according  to 
the  causes  of  death,  and  the  proportions  that  were  due  to 
the  well-recognized  preventable  diseases  and  accidents;  their 
geographical  distribution;  the  places  of  greatest  concentration; 
local  conditions  favoring  their  spread;  the  city's  equipment  for 
dealing  with  the  problem  in  its  various  phases?     And  so  on. 

Obviously,  the  facts  gathered  in  the  survey,  if  they  are  to  be  of 
real  use,  must  be  organized,  and  basic  principles  and  general 
truths  drawn  from  them.  More  than  that,  they  should  be  in- 
terpreted in  the  light  of  as  wide  an  acquaintance  as  possible  with 
the  factors  entering  into  social  problems;  and  interpreted  also, 
as  the  word  science  in  itself  implies,  with  an  eye  single  to  the 
truth,  regardless  of  the  particular  interests  that  maybe  affected. 


Constructive  Recommendations 
After  conclusions  as  to  what  the  facts  mean  are  reached,  the 
third  step  is  the  working  out  of  recommendations  for  improve- 
ment. The  survey,  of  course,  aims  at  results.  It  is  diagnosis  to 
the  end  that  prescription  may  be  written.  Results  very  often 
follow  the  mere  turning  of  the  light  upon  unwholesome  conditions, 
particularly  in  cases  where  conditions  are  notoriously  bad.  But 
in  general,  conclusions  should  be,  and  are,  accompanied  by 
recommendations  as  to  the  first  and  later  steps  to  be  taken  in 
solving  the  problems  that  the  community  faces.  The  soundness 
of  the  recommendations  depends  in  some  measure  upon  the 
familiarity  of  the  surveyor  with  the  methods  and  experience  of 
other  communities  in  dealing  with  similar  or  related  difficulties, 
and  in  new  situations  upon  his  abihty  to  invent  practical  methods 
and  procedures.  Having  gone  deeply  into  the  city's  problems, 
the  community  will  expect  and  want  the  surveyor's  best  judg- 
ment as  to  their  solution,  but  the  community  will  also,  and  should, 
reserve  the  right  to  accept  or  reject  the  measures  suggested  ac- 
cording as  the  majority  are  impressed  and  convinced  of  their 

7 


COMMUNITY   ACTION   THROUGH   SURVEYS 

necessity  and  effectiveness.  If  the  majority  cannot  be  ulti- 
mately convinced,  there  is  grave  doubt  whether  the  findings 
should  be  accepted,  for  democracy  is  built  upon  the  principle 
that  what  the  majority  decides  is  right — particularly  if  the  essen- 
tial facts  have  been  given  full  publicity. 


Presentation  of  Survey  Findings 
That  leads  to  the  fourth  feature  of  the  survey  as  a  measure 
for  community  action — the  presentation  of  the  survey  findings, 
conclusions,    and   recommendations   to   the   whole   citizenship; 
the  convincing  of  the  public. 

First  and  last  the  survey  is  an  educational  measure,  spreading 
its  information  in  the  un technical  phrases  of  the  street.  It  is  a 
means  to  better  democracy  by  informing  the  community  upon 
community  matters,  and  thereby  providing  a  basis  for  intelligent 
public  opinion.  It  is  a  school  whose  teaching  is  not  confined  to 
children  and  youth,  but  which  aims  to  get  its  facts  and  message, 
expressed  in  the  simple  terms  of  household  experience,  before 
the  whole  people.  It  utilizes  as  many  channels  of  education  as 
possible. 

If  the  information  and  knowledge  it  has  obtained  are  to  be- 
come a  part  of  the  common  experience  of  the  community,  more- 
over, it  must  recognize  that  the  individual  or  organization  who 
would  speak  to  the  millions  nowadays  has  great  competition. 
With  the  motion  picture  showing  African  jungles,  Indian  Dur- 
bars, and  scenes  that  formerly  only  the  very  rich  could  see,  all 
now  within  one's  reach  for  a  few  cents;  with  the  newspaper 
brought  down  to  one  cent  a  copy,  and  at  the  same  time  made 
more  pictorial  and  attractive  and  going  into  practically  every 
urban  home  with  the  telegraphic  news  of  all  the  world  also  on  its 
pages;  with  the  great  increase  in  the  number  of  popular  maga- 
zines; and  with  other  developing  inroads  and  drafts  upon  the 
individual's  leisure  time,  the  social  surveyor  must  also  put  his 
message  in  a  way  that  is  both  interesting  and  quick,  and  easy  to 

8 


COMMUNITY  ACTION   THROUGH   SURVEYS 

understand.  These  publicity  agencies — already  mentioned — the 
daily  press,  the  graphic  exhibit,  the  illustrated  periodical,  the 
public  address  and  entertainment,  the  motion  picture  screen,  as 
well  as  the  printed  pamphlet  and  book  report — should  be  utilized, 
and  utilized,  moreover,  with  as  great  a  command  as  possible  of 
the  technique  of  these  different  publicity  mediums. 

To  illustrate,  in  the  case  of  the  exhibit,  it  is  not  enough  to  fill 
a  hall  with  pictures,  diagrams,  and  models.  If  information  is 
to  be  spread  effectively  through  symbols,  the  various  exhibits 
must  have  organization  and  unity,  and  as  much  as  possible  of  the 
technique  for  interest-compelling  presentation  should  be  taken 
advantage  of.  In  other  words,  the  exhibit,  like  the  pamphlet, 
the  tract,  the  magazine  article,  or  the  book,  must  have  plan, 
structure,  color,  variety,  and  point,  if  it  is  to  be  effective.  This 
is  merely  saying  that  in  the  graphic  spreading  of  survey  findings 
it  is  just  as  important  to  employ  the  highest  technical  excellence 
that  the  exhibit  has  attained  as  it  is  to  conform  to  high  standards 
of  accuracy  in  gathering  and  interpreting  the  facts.  Indeed, 
it  applies  even  in  greater  degree  to  the  exhibit  because  of  the  very 
common  tendency  to  place  too  much  reliance  upon  the  belief  that 
exhibits,  because  pictorial,  are  always  interesting  and  instructive 
no  matter  how  inadequately  organized  and  correlated.  But  if 
the  careful  planning  is  needed  for  the  exhibit,  it  is  even  more 
needed  for  other  educational  measures  and  particularly  for  the 
printed  page. 

These  four  survey  features  have  to  do  chiefly  with  method. 
There  are,  however,  at  least  two  other  characteristics  that  should 
be  mentioned — which  in  part  at  least  relate  to  method  also. 


The  Survey  a  Community  Enterprise 
Fifth,  the  survey  is  distinctly  a  community  enterprise.     It 
describes  conditions  in  a  definite  geographical  area,  and  it  re- 
quires the  co-operation  of  all  interested  in  that  area.     Recogni- 
tion of  the  complexity  and   the  wide  ramifications  of  social 

9 


COMMUNITY  ACTION   THROUGH   SURVEYS 

problems  have  made  the  survey  different  from  other  investiga- 
tions. Many  of  these,  for  instance,  are  studies,  close  scrutinies, 
or  examinations  into  some  one  problem  which  is  more  or  less 
complete  in  itself;  such,  for  example,  as  a  study  of  the  vital 
statistics  of  a  city,  the  finances  of  the  health  department,  the 
city's  milk  inspection  work,  etc.  The  social  survey,  on  the  other 
hand,  is  a  group  of  such  investigations.  In  other  words,  a  sur- 
vey is  a  scrutinizing  of  such  individual  and  related  subjects  as 
knot  themselves  together  into  the  larger  community  problems. 
The  value  of  this  co-ordinated  inquiry,  however,  does  not  mini- 
mize that  of  specialized  work  along  any  one  line.  The  com- 
parison is  here  made  merely  to  point  out  that  the  two  types  of 
work  are  different  and  that  the  function  of  the  survey  is  to  gather 
the  information  for  attacking  along  many  related  lines,  and  for 
enabling  the  improvement  agencies  to  fit  their  work  together  in 
a  united  front. 

To  attack  municipal  problems  in  their  larger  aspects  and  their 
various  bearings,  the  community  must  work  together.  This  is 
essential.  And  co-operation  is  growing  easier.  With  even  the 
larger  and  more  densely  populated  city  areas  now  connected  with 
a  working  center  by  the  telephone,  by  cheap  and  better  transpor- 
tation, by  the  daily  press,  the  typewriter  and  the  multigraphing 
machine,  thus  releasing  these  areas  from  earlier  difficulties  of 
distance  and  slow  communication,  it  is  possible  for  interested  men 
and  women  to  get  together  in  larger  units — and  to  work  more 
effectively.  The  survey,  by  dealing  with  many  subjects,  affords 
a  rallying  center  as  well  as  the  so-called  psychological  moment, 
for  arousing  the  whole  community  to  organized  co-operative,  and, 
therefore,  more  forceful  action — often  along  the  very  lines  where 
intermittent,  unrelated  efforts  had  previously  been  made  without 
result.  Thus  the  survey  through  the  authority  and  the  authen- 
ticity of  its  facts  not  only  educates  the  whole  community  but 
through  its  uniting  of  interests  promotes  co-operative  community 
action,  believing  that  we  have  yet  touched  only  the  remote  fringes 
of  the  latent  power  of  the  community  for  good  when  aroused  to 
think  in  terms  of  the  whole  and  to  act  as  an  organized  unit. 

10 


community  action  through  surveys 

Follow-up  Work 
Sixth,  the  survey,  to  get  the  fullest  results,  should  be  "followed 
up."  After  the  first  general  awakening  of  interest,  the  citizens 
need  to  be  systematically  re-acquainted  with  the  conditions 
found,  and  the  public  mind  consecutively  urged  to  take  the  next 
steps.  The  information  should  not  be  allowed  to  grow  dim  or 
out  of  date,  nor  effort  be  allowed  to  grow  stale.  Follow-up  work, 
therefore,  should  be  both  a  further  driving  home  of  what  informa- 
tion is  already  in  hand  and  also  a  more  or  less  continuous  in- 
vestigation of  new  developments  and  changing  needs. 

A  Brief  Definition 
To  sum  up  the  survey  in  a  few  sentences  at  this  point,  it  is  an 
implement  for  more  intelligent  democracy,  its  chief  features 
or  characteristics  being:  the  careful  investigation,  analysis,  and 
interpretation  of  the  facts  of  social  problems;  the  recommenda- 
tion and  outlining  of  action  based  on  the  facts,  and  the  acquaint- 
ing and  educating  of  the  community  not  only  to  conditions  found 
but  to  the  corrective  and  preventive  measures  to  be  adopted. 
The  survey  lays,  moreover,  emphasis  upon  the  importance  of 
studying  problems  in  their  various  community-wide  relations  and 
urges  co-operative  action  on  a  community-wide  basis.  It  deals 
with  the  whole  district  and  endeavors  to  lead  individuals  to 
think  in  terms  of  the  whole.  //  is  the  application  of  scientific 
method  to  the  study  and  solution  of  social  problems,  which  have 
specific  geographical  limits  and  bearings,  plus  such  a  spreading  of 
its  facts  and  recommendations  as  will  make  them,  as  far  as  possible, 
the  common  knowledge  of  the  community  and  a  force  for  intelligent 
co-ordinated  action. 

An  Illustrative  Survey 
So  much  for  the  survey  in  its  parts.     Perhaps  I  may  take  a 
few  moments  to  show  its  workings  in  a  specific  case  and  to  apply 
a  few  quick  tests  of  results.     The  case  is  the  Springfield  (Illinois) 

II 


COMMUNITY  ACTION   THROUGH   SURVEYS 

Survey.  I  shall  refer  to  the  Springfield  Survey  with  some  free- 
dom because  it  was  no  one  organization's  job.  It  was  a  co- 
operative undertaking,  joined  in  by  many  organizations  and  indi- 
viduals. A  little  over  two  years  ago,  that  is  in  1914,  a  group  of 
public-spirited  Springfield  citizens  who  had  been  giving  some 
thought  to  social  conditions  in  their  city  and  had  become  dis- 
satisfied with  them,  decided  that  the  time  had  arrived  to  get  out 
of  their  maze  of  conflicting  opinions  and  beliefs  and,  if  possible, 
onto  a  basis  of  certitude  in  working  for  community  advance. 

There  were  some  citizens,  for  example,  who  believed  Spring- 
field's pubHc  schools  compared  well  with  those  of  other  cities; 
but  there  were  others  who  believed  the  school  work  needed  to  be 
readjusted  to  the  changed  conditions  under  which  the  upcoming 
generation  of  school  children  must  live  and  work.  Some  regarded 
their  school  houses  with  pride  and  satisfaction,  while  others  be- 
lieved them  to  be  far  below  modern  standards  of  construction 
and  equipment.  Some  boasted  of  the  city  as  the  most  healthful 
place  to  live  in  the  state,  and  others  believed  the  number  of 
deaths  from  preventable  causes  was  higher  than  it  should  be 
and  that  the  public  health  service  was  too  meagerly  financed. 
Some  believed  that  their  labor  disturbances  were  due  to  the  mere 
desire  of  the  unions  to  kick  up  agitation,  others  that  the  disturb- 
ances indicated  something  wrong  with  wages,  employment 
opportunities,  and  general  working  conditions.  There  were 
those  who  believed  any  treatment  to  be  good  enough  for  law- 
breakers, but  others  were  of  the  opinion  that  the  treatment  ac- 
corded offenders  often  contributed  to  the  problem  of  crime  in- 
stead of  protecting  the  community,  and  that  the  offender  himself 
was  worthy  of  consideration.  Some  believed  the  welfare  of  the 
insane  to  be  relatively  unimportant,  others  that  there  must  be 
a  better  method  than  to  treat  them  like  criminals.  A  few  thought 
that  playgrounds,  sports,  and  other  recreation  activities  were 
among  the  frivolities,  but  others  that  they  could  be  constructive 
and  reconstructive  forces.  Some  pointed  with  pride  to  the 
growth  of  the  city  as  indicated  by  the  recent  building  of  apart- 

12 


COMMUNITY  ACTION   THROUGH   SURVEYS 

ment  houses  and  multiple  dwellings;  others  were  of  the  opinion 
that  Springfield  should  conserve  the  great  advantage  it  had  as  a 
city  of  single  family  homes.  Some  thought  the  giving  of  mate- 
rial relief  to  be  the  beginning  and  end  of  charitable  effort,  others 
that  something  more  constructive  could  be  done.  And  so  on ;  the 
opinions  and  beliefs  were  as  conflicting  and  various  as  they  are  in 
every  live,  growing,  American  city.  Fortunately  a  few  interested 
citizens  thought  it  important  to  give  them  the  test  of  fact. 


A  Co-operative  Community  Effort 
A  survey  committee  of  some  25  representative  Springfield 
persons  was  organized.  The  chairman  was  a  state  senator,  and 
among  the  other  members  were  a  former  lieutenant-governor  of 
Illinois,  a  state  commissioner,  the  city  superintendent  of  schools, 
other  public  officials,  business  men,  labor  leaders,  clergymen, 
doctors,  women's  club  leaders,  editors,  teachers,  and  social 
workers.  The  planning  and  direction  of  the  survey  was  put  into 
the  hands  of  the  Department  of  Surveys  and  Exhibits  of  the 
Russell  Sage  Foundation,  and  that  department  in  turn  secured 
the  assistance  and  service  of  six  other  departments  of  the 
Foundation,  together  with  that  of  five  other  national  organiza- 
tions, five  lUinois  state  organizations,  the  co-operation  of  the 
social  agencies  of  Springfield,  and  the  assistance  of  over  600 
volunteer  workers  in  Springfield — including  both  the  workers 
on  the  survey  investigations  and  those  helping  in  the  survey 
exhibition.  The  five  national  organizations  were:  the  United 
States  Public  Health  Service,  American  Association  of  Societies 
for  Organizing  Charity,  National  Association  for  the  Study  and 
Prevention  of  Tuberculosis,  National  Committee  for  Mental 
Hygiene,  and  the  National  Housing  Association.  The  five 
Illinois  organizations  were:  Illinois  State  Board  of  Health,  Il- 
linois State  Water  Survey,  Illinois  Conference  of  Charities  and 
Corrections,  Illinois  State  Food  Commission,  and  the  State  De- 
partment of  Factory  Inspection. 

13 


COMMUNITY  ACTION  THROUGH   SURVEYS 

The  survey  comprised  nine  main  divisions,  as  follows: 
I.  The  Public  Schools  of  Springfield. 

II.  Care  of  Mental  Defectives,  the  Insane,  and  Alcoholics 
in  Springfield. 

III.  Recreation  in  Springfield. 

IV.  Housing  in  Springfield. 

V.  Public  Health  in  Springfield. 
VI.  The  Correctional  System  of  Springfield. 
VII.  The  Charities  of  Springfield. 

VIII.  Industrial  Conditions  in  Springfield. 
IX.  City  and  County  Administration  in  Springfield. 

Had  time  and  funds  allowed,  other  subjects  would  have  been 
added;  namely,  city  planning;  home  conditions,  as  such;  com- 
mercialized vice;  and  the  religious  forces  of  the  city.  All  of 
these,  however,  were  dealt  with  in  some  degree  as  parts  of  the 
nine  main  divisions. 

The  facts  collected  in  these  nine  divisions  were  in  due  time 
analyzed  and  interpreted,  and  followed  by  the  working  out  of 
detailed  recommendations  for  improvement.  All  of  the  reports 
were  fully  summarized  in  the  local  Springfield  press,  the  news- 
papers handling  from  12  to  30  full  column  stories  on  each  report. 
In  addition,  an  exhibition  of  survey  findings  was  held  in  the  state 
armory — which  was  open  for  ten  days  and  which  attracted  thou- 
sands of  visitors,  including  many  from  distant  parts  of  the  state. 
Finally,  the  complete  statement  of  findings  is  being  published  in 
ten  separate  illustrated  volumes. 

During  two  months  preceding  the  opening  of  the  exhibition  a 
special  campaign  of  publicity  and  promotion  was  carried  on  which 
kept  the  subject  of  the  survey  before  the  people  pretty  constantly. 
A  sufficient  number  of  interesting  things  happened  during  the 
course  of  the  campaign  to  furnish  still  other  daily  survey  stories 
for  the  papers ;  and  as  the  campaign  grew,  more  and  more  people 
not  formerly  associated  with  social  work  became  interested  and 
lent  their  help.  The  exhibition  campaign  included  public  ad- 
dresses before  churches,  lodges,  labor  unions,  school  clubs,  and 

14 


COMMUNITY  ACTION  THROUGH  SURVEYS 

Other  organizations  and  societies.  It  also  utilized  the  short 
educational  play  especially  written  for  the  occasion  to  drive  home 
some  of  the  important  lessons  of  the  survey. 

As  to  follow-up  work,  the  survey  committee  organized  itself 
into  sub-committees  which  were  charged  with  carrying  out  the 
recommendations  for  each  of  the  main  fields  covered.  These 
have  already  some  accomplishments  to  their  credit. 


As  Teaching  Material  in  the  Public  Schools 
May  I  here  digress  long  enough  to  refer  to  another  use  of  the 
Springfield  Survey  and  similar  reports  on  social  conditions; 
namely,  their  use  in  the  public  schools?  They  have  already  been 
introduced  into  college  class  rooms,  but  it  seems  entirely  in  line 
with  the  current  effort  to  make  the  teaching  of  our  high  schools 
more  practical  to  ask  that  they  be  used  there  also.  Dean  Gallo- 
way, of  the  New  York  College  of  Agriculture  at  Cornell,  was  re- 
ported in  the  newspapers  not  long  ago  as  saying  that  "the  de- 
mand is  for  education  that  will  teach  the  meaning  of  things  and 
their  relation  to  the  present,  rather  than  the  teaching  of  words 
and  their  relation  to  the  past.  I  am  not  so  much  concerned," 
he  continued,  "with  making  more  farmers  as  I  am  with  making 
better  ones."  We  hear  that  sentiment  expressed  also  in  reference 
to  preparing  children  for  their  life  occupations,  particularly  in 
the  case  of  industrial  education. 

Is  it  not  time  that  we  as  social  workers  and  as  citizens  should 
insist  upon  the  use  in  the  school  room  of  material  that  can  be 
employed  in  the  teaching  of  civic  and  social  subjects  in  their  rela- 
tion to  the  present,  rather  than,  to  use  Dean  Galloway's  phrase, 
in  "the  teaching  of  words  and  their  relation  to  the  past?"  I  do 
not  mean,  of  course,  the  introduction  in  high  school  of  a  course 
aimed  to  prepare  one  for  professional  social  work,  although  some 
preliminary  intelligence  along  that  line  for  the  one  who  later 
selects  such  a  career  would  not  be  out  of  place.  What  I  do  mean 
is  that,  if  we  expect  the  upcoming  generation  to  be  intelligent 

15 


COMMUNITY  ACTION   THROUGH   SURVEYS 

and  take  its  part  in  public  affairs,  it  is  high  time  that  the  les- 
sons drawn  from  some  of  the  current  social  facts  and  principles, 
whether  found  in  Russell  Sage  Foundation  surveys,  the  Bureau 
of  Municipal  Research  surveys,  the  United  States  Children's 
Bureau  surveys,  the  Cleveland  Foundation  surveys,  or  any 
others,  be  taught  in  the  public  schools.  It  would  seem  that  such 
material,  by  presenting  definite  cases  and  by  providing  concrete 
illustrations  for  the  principles  laid  down  in  dealing  with  present 
social  and  civic  problems,  would  be  useful  in  supplementing  (and 
perhaps  in  furnishing  a  medium  for  interpreting)  the  more  gen- 
eral material  of  the  current  text-books  on  civics  and  government. 
I  have  not  the  slightest  desire  to  overemphasize  the  Spring- 
field effort,  and  I  am  fully  aware  of  the  existence  of  other  survey 
material  of  equal  or  greater  value;  but  since  there  may  be  places 
where  this  particular  material  will  have  special  fitness  for  teach- 
ing, I  venture  to  spend  a  few  additional  moments  upon  it. 


Springfield  as  a  Typical  City 
Mention  has  already  been  made  of  some  of  Springfield's  prob- 
lems which  are  among  the  live  issues  in  scores,  if  not  hundreds,  of 
other  American  communities.  But  Springfield  has  other  features 
besides  her  social  problems  which  make  it  typical.  Its  economic 
life  is  of  quadrivial  structure,  to  go  far  afield  for  a  word.  It  is 
built  where  four  main  currents  quick  with  energy  and  possibilities 
for  community  building  come  together — manufacturing,  mining, 
agriculture,  and  commerce.  Indeed,  Springfield  might  count  a 
fifth  main  current — the  business  of  public  service.  Springfield 
is  the  capital  of  Illinois,  and  the  location  here  of  the  head  offices 
of  the  state,  county,  and  city  governments,  with  their  thousand 
and  more  workers,  has  been  an  additional  important  factor  in  the 
growth  of  the  city. 

Springfield's  manufactures  are  about  the  average  for  places 
of  her  size.  They  are  diverse,  ranging,  for  example,  from  agri- 
cultural implements  to  watches,  building  brick  to  shoes,  grist 

i6 


COMMUNITY  ACTION   THROUGH   SURVEYS 

mill  products  to  asphalt  paving,  and  on  through  a  long  list.  A 
bed  of  soft  coal,  averaging  over  five  feet  in  thickness,  underlies 
the  city  and  surrounding  territory  and  furnishes  power  for  its 
factories.  Several  mine  tipples  stand  near  the  city  and  2,500 
Springfield  residents  are  employed  in  the  coal  pits.  The  sur- 
face of  Sangamon  and  the  adjacent  counties  is  covered  by  a 
stratum  of  the  same  fertile  soil  found  in  other  parts  of  the  corn 
belt.  This  soil  extends  over  low  hills  and  is  well  adapted  to 
farming.  And  with  no  large  centers  nearer  than  30  miles,  Spring- 
field is  the  collecting  and  shipping  point  for  the  farm  products 
from  a  large  area,  as  well  as  for  its  own  manufactured  and  mine 
products.  It  is  also  an  important  distributing  point  to  the  sur- 
rounding district.  This  four-ply  structure,  not  to  include  the 
fifth,  obviously  increases  the  possibility  of  problems  and  interests 
similar  to  those  of  other  cities,  whether  they  are  built  on  four  or 
three  or  two  or  one  of  the  major  business  activities  of  this  district. 

Springfield,  moreover,  is  a  city  not  of  many  extremes  but  of 
many  averages.  Located  about  midway  between  the  northern 
and  southern  states  and  near  the  center  of  population  of  the  coun- 
try, it  has  shared  in  the  cross  currents  of  political,  social  and  eco- 
nomic forces  of  the  East  and  the  West,  the  North  and  the  South. 
It  is  not  congested.  The  multiple  dwelling  has  appeared  in  a  few 
parts  of  town,  but  for  the  most  part  residents  live  in  single  family 
houses.  Its  increase  in  population  has  been  at  a  comparatively 
regular  yearly  rate.  The  city  is  built  on  land  that  is  flat,  about 
four-fifths  of  its  area  varying  not  more  than  20  feet  between  the 
highest  slope  and  the  deepest  ravine.  Like  most  other  American 
cities,  it  had  grown  without  the  guidance  of  a  city  plan  and  the 
usual  rectangular  block  prevails.  Commission  government  was 
adopted  at  about  the  time  it  was  being  adopted  in  many  other 
places. 

In  addition  it  should  be  pointed  out  that  Springfield  is  a  city 
of,  roughly,  60,000  people ;  that  out  of  the  228  incorporated  places 
in  the  United  States  which  in  1910  had  25,000  or  more  inhabi- 
tants, 196,  or  86  per  cent,  ranged  from  25,000  to  150,000;   that 

17 


COMMUNITY  ACTION  THROUGH   SURVEYS 

cities  within  these  population  limits  are  likely  to  have  many 
common  civic  and  social  problems;  that  a  state  capital  should 
mean  state  leadership  in  municipal  advance  movements;  that 
there  are  47  other  state  capitals  in  the  United  States ;  and  that 
the  city  entertains  many  visitors  from  other  cities  in  connection 
with  the  meetings  of  the  legislature,  the  annual  state  fair,  the 
annual  encampment  of  the  state  militia,  and  sessions  of  many 
civic,  trade,  and  other  conventions. 

These  facts  indicate  some  of  the  reasons  why  the  survey  was 
undertaken  and  show  some  of  its  broader  bearings.  They  also 
indicate  some  of  the  reasons  why  the  various  national  organiza- 
tions joined  with  the  forward-looking  Springfield  men  and  wo- 
men who  were  willing  to  bear  a  large  share  of  the  cost  of  the  un- 
dertaking in  time  and  money,  as  well  as  why  the  reports  should  be 
useful  for  students  of  municipal  problems  in  other  cities. 

Results  from  Surveys 
But  to  return  from  the  digression,  I  have  tried  to  describe  how 
the  survey  is  designed  to  get  community  action,  and  why  results 
should  follow.  But  it  may  very  well  be  asked:  Do  results  fol- 
low? Does  the  survey  really  lead  to  action?  An  adequate 
answer  would  require  a  great  deal  more  time  and  painstaking 
work  than  any  one  has  yet  been  able  to  devote  to  it.  The  answer 
will  be  worth  the  effort,  however,  and  doubtless  sooner  or  later 
will  be  sought.  But  in  the  meantime  there  are  some  very  sig- 
nificant indications,  even  though  they  may  not  tell  the  whole 
story. 

Community  Education  and  Awakening 
Recalling  that  the  survey  is  first  and  last  an  educational  meas- 
ure aimed  at  informing  the  citizens  on  local  conditions  and  public 
questions,  and  to  stimulate  thinking  in  terms  of  the  whole  com- 
munity, a  few  public  statements,  which  have  come  to  us  only 
incidentally  and  after  their  publication  elsewhere  in  various 
locaHties,  are  illuminating. 

18 


COMMUNITY  ACTION  THROUGH   SURVEYS 

For  example,  A.  L.  Bowen,  Secretary  of  the  Illinois  State 
Charities  Commission,  in  a  recent  address,  said: 

"In  any  campaign  such  as  the  survey  has  been  and  still  is,  we  must  al- 
ways look  for  two  classes  of  results.  We  must  ferret  out  the  intangible  or 
abstract  results.  We  must  find  the  tangible  or  concrete  results.  Very 
often  the  intangible  results  of  a  great  public  welfare  movement  are  by  far 
the  most  important  and  far  reaching.  I  think  this  is  true  in  the  matter  in 
hand.  The  intangible  results  of  the  Springfield  Survey  are  worth  more  to 
our  community  than  those  which  we  can  actually  see  with  our  eyes  or  touch 
with  our  hands.  I  would  say  a  new  community  conscience,  or,  perhaps  more 
truthfully,  an  aroused  and  stimulated  community  conscience,  is  the  most 
noteworthy  effect  of  the  survey.  Our  attitude  of  a  community  toward  all 
questions  affecting  its  well-being  has  radically  changed.  We  see  new  mean- 
ings in  them  and  react  to  them  in  a  different  manner.  Our  sense  of  duty  in 
many  cases  where  it  formerly  would  have  been  dormant  now  asserts  itself 
and  prompts  us  to  action.    There  is  a  new  spirit  in  our  work." 

Similarly,  Nicholas  Vachel  Lindsay,  a  resident  of  Springfield, 
and  an  observer  and  writer  of  distinction,  ended  a  magazine  article 
descriptive  of  the  survey  exhibition  with  this  paragraph  : 

"I  at  least  feel  that  the  picture  of  this  survey  exhibit  will  remain  in  the 
minds  of  the  citizens  as  the  general  concept  toward  which  they  are  all  going. 
The  spirit  of  that  final  dinner,  with  its  new  leaders  springing  up  and  its 
sober  resolution  will  probably  abide.  We  have  the  serious  expectation  that 
henceforth  Springfield's  graver  rank  and  file  and  leading  citizens  of  whatever 
party  are  enhsted  for  steady  Hfetime  tasks,  each  in  his  chosen  place." 

Again,  H.  T.  Chase,  chief  editorial  writer  of  the  Topeka  Daily 
Capital,  in  an  article  on  the  survey,  which  was  recently  made 
of  Topeka,  issued  this  statement: 

"The  survey  has  broadened  the  foundations  of  existing  welfare  organiza- 
tions and  awakened  a  larger  and  more  sympathetic  popular  confidence  in 
systematic  and  organized  methods  of  welfare  work,  as  well  as  a  deeper  con- 
sciousness of  municipal  responsibilities  and  capabilities,  a  profounder  sense 
of  the  city's  unity." 

19 


COMMUNITY  ACTION   THROUGH   SURVEYS 

A  short  time  before  the  Topeka  Survey,  Newburgh,  N.  Y.,  went 
through  the  ordeal.  In  an  article  published  in  The  Survey 
magazine  in  October,  1914,  Amy  Woods,  secretary  of  the  New- 
burgh Associated  Charities  at  that  time,  is  quoted  as  saying: 
"All  these  are  specific  improvements  [referring  to  results  of  the 
survey],  but  I  want  to  emphasize  what  to  me  seems  the  most 
significant  aftermath  of  the  survey.  It  is  the  awakened  social 
atmosphere  of  the  town."     And  she  goes  on  to  describe  it. 

You  will  perhaps  recall  that  Pittsburgh  had  a  survey  several 
years  ago.  A  few  years  later,  H.  D.  W.  English,  a  prominent 
business  man  and  former  president  of  the  Pittsburgh  Chamber  of 
Commerce,  wrote  to  the  business  men  of  Topeka,  Kansas,  re- 
garding the  usefulness  of  surveys,  and  among  other  things  said : 
"We  have  found  here  [referring  to  Pittsburgh]  a  much  better 
and  finer  spirit;  a  determination  to  get  together  not  only  bravely 
to  face  all  the  wrongs  which  the  survey  had  disclosed,  but  to 
correct  them."* 

And  so  the  quoting  of  competent  seasoned  testimony  could  be 
extended  to  great  length. 

Specific  Accomplishments 

But  the  indications  as  to  results  are  not  limited  to  general 

community  education;  there  are  signs,  at  least,  of  specific  results. 

I  say  signs,  for  it  is  not  possible  in  most  cases  to  be  sure,  as  Mr. 

Bowen  has  pointed  out,  just  what  are  the  direct  results  of  a  given 

survey.     The  survey,  as  already  stated,  shows  conditions  and 

needs  and  furnishes  a  program  of  improvements;   but  after  all, 

the  program  must  be  carried  out  very  largely  by  other  agencies 

than  those  that  made  the  investigation,  and  they  should  come  in 

for  a  good  deal  if  not  for  most  of  the  credit  for  results.     Some 

*  One  of  the  important  specific  results  that  followed  the  Pittsburgh  Survey 
was  the  elimination  of  several  features  of  the  Pittsburgh  taxation  system,  which, 
prior  to  1912,  distributed  the  tax  burden  very  unevenly  and  unjustly  among  the 
citizens — some  property  under  the  old  scheme  paying  more  than  three  times 
the  rates  paid  by  other  properties,  and  the  high  rates  in  most  cases  falling  upon 
those  least  able  to  pay.  1 

20 


COMMUNITY  ACTION  THROUGH  SURVEYS 

time  ago,  however,  we  tried  to  list  the  events  which  pretty  clearly- 
had  their  beginning  in  survey  recommendations — or  at  any  rate, 
the  advances  made  in  the  community  since  the  survey,  which  had 
been  specifically  recommended  by  the  survey,  no  matter  what 
other  agencies  had  also  helped.  In  compiling  the  list,  no  special 
effort  has  been  made  to  gather  inclusive  data.* 


Springfield  Developments 
First,  as  to  developments  following  the  Springfield  Survey: 

In  the  Public  Schools 

1.  The  Rules  of  the  Board  of  Education  have  been  revised,  reducing 

the  number  of  committees  to  three,  as  follows:  (a)  Education,  (b) 
Finance  and  Supplies,  and  (c)  School  Property. 

2.  The  junior  high  school  system  has  been  adopted,  and  four  junior 

high  schools  organized. 

3.  A  new  high  school  principal  was  elected,  and  the  entire  organiza- 

tion and  course  of  study  changed.  A  well-planned  system  of  super- 
vised study  has  been  introduced,  and  it  is  reported  that  the  best  of 
discipline  is  obtained  without  friction. 

4.  A  new  modern  high  school  building  is  now  being  erected  and  will  be 

ready  for  occupancy  next  year.  This  building  will  accommodate 
about  1,500  pupils,  and  will  cost,  completed,  nearly  $500,000. 

5.  The  lighting,  ventilation  and  general  sanitation  of  all  the  schools  have 

been  given  attention  and  greatly  improved.  Fire  exit  locks  have 
been  placed  on  all  outside  doors,  and  fire  escapes  on  the  high  school. 

6.  The  new  school  buildings  in  course  of  erection  meet  much  higher 

standards  with  respect  to  lighting,  heating,  ventilation  and 
sanitation. 

7.  A  special  supervisor  of  buildings  is  employed  to  see  that  the  property 

of  the  school  district  is  kept  in  proper  repair. 

8.  Patrons'  clubs  have  been  organized  in  every  district  of  the  city,  and 

nearly  every  school  house  is  now  used  as  a  social  center  for  neigh- 
borhood meetings.    Public  meetings  and  poUtical  discussions  are 

*  The  items  listed  for  the  most  part  came  to  our  notice  through  newspapers 
and  the  press  clipping  service.     They  have  not  been  fully  checked  up. 

21 


COMMUNITY  ACTION   THROUGH   SURVEYS 

held  in  the  auditoriums  of  the  several  schools,  and  about  one-third 
of  the  voting  places  of  the  city  are  now  located  in  school  buildings. 
9.  The  number  of  teachers  employed  in  manual  training  and  household 
arts  has  been  more  than  doubled  since  the  survey,  and  pre-voca- 
tional  training  and  guidance  are  promoted. 

10.  The  school  census  has  been  revised,  and  valuable  additional  informa- 

tion is  now  obtained. 

11.  A  new  salary  schedule  for  teachers  and  janitors  has  been  established 

on  a  basis  of  efficiency,  and  the  required  qualifications  of  principals 
and  teachers  has  been  raised. 

12.  Seven  branch  libraries  have  been  established  in  as  many  different 

schools,  and  five  other  centers,  the  books  being  furnished  to  each  of 
these  twelve  schools  through  the  city  library. 

13.  Attendance  department  has  been  reorganized  and  an  experienced 

supervisor  of  attendance  has  been  secured.  The  work  of  the  de- 
partment has  been  studied  and  systematized. 

14.  Finally  the  entire  course  of  study  for  the  elementary,  junior  high, 

and  senior  high  schools,  has  been  revised  and  made  more  modern. 

Delinquency  and  Corrections 

1.  The  sheriff  has  pledged  himself  to  turn  into  the  county  treasury 

approximately  $7,500  per  year  of  profits  from  feeding  prisoners  in 
the  county  jail.  A  first  return  has  already  been  made.  This 
money  previously  had  gone  into  the  sheriff's  pockets.  For  his 
four-year  term  the  total  will  approximate  $30,000,  an  amount  alone 
that  exceeds  the  cost  of  the  Springfield  Survey. 

2.  The  closing  of  the  former  large  and  flourishing  red-light  district  of 

the  city.  It  had  existed  as  a  recognized  community  institution  for 
fifty  years. 

3.  Appointment  of  a  policewoman  and  a  woman  deputy  sheriff. 

4.  Improvement  of  the  juvenile  detention  home. 

5.  Improvements  made  in  conditions  in  the  county  jail  and  a  beginning 

made  in  putting  city  and  county  prisoners  at  work  in  farming  and 
gardening.  Progress  toward  the  establishment  of  a  modern  in- 
stitution for  the  care  of  city  and  county  prisoners  is  also  reported. 

6.  The  Humane  Society  has  abandoned  its  plan  of  subsidizing  regular 

policemen  for  its  work. 


22 


COMMUNITY  ACTION  THROUGH   SURVEYS 

Health 

1.  Infant  hygiene  work  started. 

2.  Announcement  made  of  a  movement  on  foot  for  new  contagious 

disease  hospital  facilities. 

3.  The  Tuberculosis  Association  has  reorganized  itself  and  its  work, 

placing  more  emphasis  upon  educational  features. 

4.  Free  dispensary  established  at  St.  John's  Hospital. 

5.  Publication  of  the  milk  inspection  scorings  of  milk  dealers  has  been 

started  by  the  Health  Department  and  an  improvement  in  the  milk 
situation  is  claimed. 

Charities 

1.  A  new  Associated  Charities  secretary  has  been  secured  and  marked 

improvements  have  been  made  in  the  society's  methods.  In  fact, 
its  work  has  been  completely  reorganized. 

2.  A  county  child  welfare  organization  is  planned. 

3.  Better  co-operation  between  private  charitable  societies  and  between 

the  public  and  private  agencies  has  been  accomplished. 

4.  Improvements  have  been  made  in  bringing  legal  influence  to  bear 

upon  non-supporting  husbands  and  fathers. 

5.  Home  for  the  Friendless  has  begun  to  initiate  placing-out  and  other 

child  welfare  work  along  lines  recommended.  A  trained  nurse  has 
been  added  to  its  staff,  and  the  physical  condition  of  the  children 
is  reported  to  be  greatly  improved. 

6.  A  trained  nurse  employed  to  care  for  the  tuberculous  and  other  sick 

patients  at  the  County  Poor  Farm,  and  food  and  rooms  for  them 
improved. 

7.  The  attendance  department  of  the  public  schools  has  been  reorgan- 

ized with  a  view  to  closer  co-operation  with  the  Associated  Chari- 
ties and  other  social  agencies.  An  experienced  supervisor  has  been 
secured  to  have  charge  of  the  work. 

8.  A  tangible  new  interest  in  its  charitable  institutions  on  the  part  of 

the  community  is  also  reported. 

9.  Central  Council  of  Social  Agencies  organized. 

Recreation 

I.  Employment  by  the  Board  of  Education  of  a  director  of  hygiene  to 
take  charge  of  playgrounds,  athletics,  and  social  centers. 


COMMUNITY  ACTION   THROUGH   SURVEYS 

2.  Extension  of  athletic  organization  among  elementary  school  chil- 

dren, and  the  holding  of  athletic  contests  for  them  and  a  play  festi- 
val for  all  Springfield  children. 

3.  Extension  of  park  board's  plans  for  equipment  of  play  sections  of 

parks  and  an  attempt  to  work  out  a  plan  of  supervision  in  conjunc- 
tion with  school  board. 

4.  Free  pubHc  golf  courses  in  two  of  the  city's  largest  parks  have  been 

estabHshed. 

5.  Bathing  beaches  with  proper  protection  and  safeguards  have  been 

constructed  in  two  of  the  parks. 

6.  Complete  reorganization  of  Y.  M.  C.  A.  work  and  the  extension  of  its 

physical  department. 

7.  Clean-up  of  one  burlesque  theater.* 


ToPEKA  Developments 
Similarly,  a  listing  of  developments  following  the  publication 
of  the  findings  and  recommendations  of  the  Topeka  Survey 
showed : 

Health 

1.  Full-time  health  officer,  a  specialist  in  public  health  and  sanitation, 

secured. 

2.  New  and  more  able  milk  inspector  secured,  and  improvement  in  the 

milk  situation  reported. 

3.  Health  department  laboratory  with  laboratory  worker  established. 

4.  East  side  sewer  system  in  the  largest  unsewered  settled  area  in 

Kansas  provided  for  and  built.     Cost,  $150,000. 

5.  Development  of  infant  hygiene  work  by  PubHc  Health  Nursing 

Association. 

6.  First  printed  annual  report  of  the  health  department  issued. 

Delinquency  and  Corrections 

I.  Establishment  of  detention  home  for  children  held  for  the  juvenile 

court. 

*  The  final  reports  on  Industrial  Conditions  and  City  and  County  Adminis- 
tration in  Springfield  had  not  been  issued  when  this  listing  of  Springfield  devel- 
opments was  made. 

24 


/\ 


COMMUNITY  ACTION  THROUGH   SURVEYS 

2.  Bill  passed  legislature  to  permit  city  and  county  to  unite  in  estab- 
lishing a  farm  workhouse  for  lawbreakers.  A  bond  issue  for  this 
purpose  will  be  voted  on  at  the  next  election. 

Industrial  Conditions 

I.  Bill  passed  legislature  establishing  industrial  commission  and  giving 
it  power  to  limit  women's  hours  of  work  and  fix  minimum  wages. 
(This,  as  already  indicated,  cannot  be  traced  absolutely  to  the  sur- 
vey, but  both  the  hours  and  the  wages  of  women  received  marked 
attention  in  the  survey  report.) 


The  Survey  as  a  Civic  Renewal  Process 
And  now,  finally,  I  should  like  to  reverse  the  usual  proceeding 
and  announce  my  text  at  the  end  and  close  with  a  little  of  what 
the  old  darky  preacher  called  "  'spostulations."  The  text  is  what  I 
think  we  ought  to  call  the  golden  text  of  our  political  Holy  Writ. 
It  was  spoken  by  a  citizen  of  this  same  Springfield,  Sangamon 
County,  Illinois,  some  fifty  odd  years  ago  in  a  memorable  appeal. 
It  ran:  "that  we  here  highly  resolve  that  the  nation  shall,  under 
God,  have  a  new  birth  of  freedom:  and  that  the  government  of  the 
people,  by  the  people,  and  for  the  people  shall  not  perish  from  the 
earth."  These  words  were  pronounced  when  the  nation  was  at 
deadly  grips  over  a  national  social  question.  The  appeal  was  for 
a  rehallowing  of  government  to  the  task  of  serving  the  men  and 
women  who  are  the  government,  to  the  ends  of  plain  matter-of- 
fact  democracy. 

The  conflicting  interests  of  that  day,  now  long  passed  and  for- 
gotten, threatened  to  halt  that  generation's  steps  in  the  onward 
march.  At  the  same  time  they  revealed  that  generation's  op- 
portunity and  responsibility  to  do  its  part  in  keeping  alive  and 
advancing  the  democratic  movement.  For,  as  the  text  implies, 
democracy  may  need  to  be  reborn  from  time  to  time.  It  is  not  a 
static  thing,  ushered  in  complete,  handed  on  from  one  period  to 
the  next  without  diligent  relaying.  In  its  daily  motions  it  is 
subject — sometimes  profitably,  sometimes  not — to  the  dominat- 

25 


COMMUNITY  ACTION   THROUGH   SURVEYS 

ing  forces  of  the  period,  whether  political,  ecclesiastical,  economic, 
or  other.  Its  forces  ebb  and  flow  with  them,  and  must  be  re- 
freshed whenever  substantial  rights  have  been  invaded,  or,  in- 
deed, whenever  there  are  new  gains  to  the  common  weal  to  be 
won.  That  is  why,  is  it  not,  that  each  oncoming  thirty  years  or 
so  has  its  job  to  do  and  a  farther  peg  to  scale  to? 

Something,  it  seems  to  me  at  least,  that  is  mighty  fundamental 
in  the  fabric  of  our  public  affairs  has  been  in-weaving  in  the  last 
dozen  years  or  more — something  that  also  bears  the  marks  of 
high  resolve  and  carries  the  infection  of  life  and  youth  and  ren- 
aissance. It  is  a  process  of  peaceful  civic  renewal,  through  the 
scrutinizing  of  conditions  surrounding  our  daily  living,  with  a 
view  not  only  to  correcting  those  that  are  unwholesome,  but  to 
quickening  any  that  show  promise. 


Changed  Conditions  Calling  for  Action 
Back  of  this  scrutinizing  and  this  resolve  is  the  recognition  that 
times  have  changed ;  that  new  circumstances  to  the  harm  of  some 
folks  have  arisen;  that  simultaneously  new  forces  have  been 
gathering  to  cope  with  just  such  difficulties,  and  that  these  forces, 
in  the  form  of  new  knowledge  and  experience  and  more  effective 
methods,  must  be  made  to  count  at  once.  Otherwise,  if  we  do 
not  actually  lose  ground,  we  shall  at  least  be  standing  still. 

It  was  not  so  long  ago,  to  use  a  very  familiar  example,  that  most 
of  the  weaving  and  spinning  was  done  in  the  home;  but  when 
women  in  thousands  were  summoned  to  the  textile  factories,  new 
problems  immediately  arose  because  of  the  greater  dangers  of 
physical  harm  or  even  death  from  fire,  contagion,  industrial  proc- 
esses, insanitary  quarters,  and  power-driven  machinery.  Spin- 
ning and  weaving  seemed  entirely  reasonable  occupations  for 
women;  the  dangers,  therefore,  needed  to  be  removed  and  the 
factory  made  as  safe  as  the  home  workroom.  If  not,  such  assur- 
ance of  reasonable  life  as  the  worker  had  possessed  before  would 
be  lost.     Somebody  saw  the  situation  and  need,  and  a  series  of 

26 


COMMUNITY  ACTION   THROUGH   SURVEYS 

investigations  of  women  in  industry  was  begun,  aimed  at  inform- 
ing the  public  of  the  dangers  and  at  securing  intelHgent  action. 

Similarly,  people  faced  new  problems  of  safe  water  and  safe 
food  when  the  enormous  growth  of  city  populations  set  in. 
Householders  needed  the  guarantee  that  the  exigencies  of  city 
life  would  not  be  allowed  to  send  typhoid  into  their  homes  through 
the  kitchen  spigot,  or  diphtheria  through  the  medium  of  the  milk 
bottle.  Otherwise,  whatever  the  social  or  industrial  gains  in 
community  life,  its  losses  would  be  beyond  compensation.  The 
situation  needed  diagnosis  and  a  prescription. 

And  so  on;  the  modern  economic  fetters  of  the  seven-day 
week,  and  the  twelve-hour  workday,  are  just  as  heavy  and  ham- 
pering to  political  freedom  as  are  legal  fetters.  The  growing 
complexities  of  modern  life  are  many;  but  with  them  has  arisen 
the  insistence  that  changed  conditions  shall  not  leave  people 
with  less  independence,  less  opportunity,  and  less  comfort  than 
before;  rather  that  more  shall  be  wrung  out  of  life  for  them. 
Thus  the  last  decade  or  so  in  this  country  may  he  characterized  as 
years  of  social,  industrial,  and  civic  investigating,  scrutinizing,  re- 
searching, surveying,  with  a  view  to  meeting  the  new  human  needs 
discovered — a  process  predicated  on  the  desire  for  peaceful,  hut  not 
necessarily  slow  social  evolution,  rather  than  wasteful,  upturning 
revolution. 

The  successful  working  of  this  leaven  of  civic  renewal  depends 
upon  the  correcting  power  of  facts,  which  must  be  gathered  as 
carefully  and  faithfully  as  the  truth-loving  scientist  in  any  field 
gathers  them — plus  such  a  telling  of  the  facts  as  will  make  them 
common  knowledge.  It  is  believed  to  be  American  experience 
that  communities  will  act  upon  facts  when  they  have  them. 


Spread  of  the  Social  Survey 
One  of  the  forms  of  this  new  type  of  social  exploration  and  re- 
porting was  that  telling  broadside  of  fact  and  reason,  the  Pitts- 
burgh Survey,  of  1907,  already  alluded  to,  carried  on  under  the 

27 


COMMUNITY  ACTION   THROUGH   SURVEYS 

auspices  of  the  Charities  Publication  Committee  of  New  York, 
and  directed  by  Paul  U.  Kellogg — a  piece  of  work  that  started 
a  train  of  surveys  of  which  Newburgh,  Topeka  and  Springfield 
have  been  but  later  developments.  One  of  the  reviewers  of  the 
Pittsburgh  Survey  recently  said  that  "it  outstrips  any  social 
work  done  in  this  generation."  At  any  rate,  the  survey  idea 
has  spread  enormously.  Vital  as  the  idea  was  in  itself,  it  also 
doubtless  drew  some  of  its  momentum  from  the  collateral  move- 
ments in  certain  public  and  private  agencies  which  during  a 
number  of  years  have  been  emphasizing  scientific  inquiries  into 
social  conditions  as  a  part  of  their  regular  routine. 

Among  these  are  the  United  States  Bureau  of  Education,  the 
United  States  Children's  Bureau,  and  the  federal  Public  Health 
Service,  state  and  city  boards  of  health,  civic  federations,  charity 
societies,  housing  associations,  city  planning  boards,  churches, 
home  and  foreign  missionary  societies,  Sunday  school  associa- 
tions. Young  Men's  and  Young  Women's  Christian  Associations, 
chambers  of  commerce,  tax  associations,  women's  clubs,  civic 
improvement  societies,  vice  commissions,  city  boards  of  public 
welfare,  state  boards  of  charities,  recreation  associations,  com- 
mittees of  private  citizens,  many  colleges  and  universities  and  a 
few  periodicals,  public  libraries  and  normal  schools — not  to  men- 
tion a  number  of  the  philanthropic  foundations.  An  important 
recent  appearance  of  the  survey  is  an  activity  of  a  new  type  of 
foundation  under  semi-public  control,  started  by  the  Cleveland 
(Ohio)  Trust  Company  and  called  the  Cleveland  Foundation. 

The  civic  re-birth  process  is  also  seen  in  the  contemporaneous 
creation  of  bureaus  of  municipal  research,  and  of  large  numbers  of 
city,  state  and  federal  commissions  on  economy  and  efficiency. 

It  is  hoped  that  the  work  done  in  Springfield  may  add  its  small 
part  to  this  rnost  promising  movement. 

While  it  is  true  that  Springfield's  workshops,  mine  pits,  farm 
and  trade  resources  make  it  touch  elbows  with  many  other  cities, 
their  chief  function  is  to  serve  the  interests  of  Springfield  herself. 

28 


COMMUNITY   ACTION   THROUGH   SURVEYS 

They  should  furnish  the  groundwork  for  a  structure  of  social  well- 
being,  the  output  of  which  should  mount  far  above  factory  out- 
put, coal  tonnage,  farm  products  and  trade  values.  Even  with- 
out special  economic  advantages,  a  city's  responsibility  for  pro- 
moting the  welfare  of  its  citizens  must  be  acknowledged,  but  with 
these  advantages  the  responsibility  is  much  increased.  A  large 
group  of  Springfield  men  and  women,  most  of  them  already 
builders  of  this  superstructure,  were  ready  for  fresh  efforts. 
What  they  have  done  may  seem  but  a  modest  contribution  to  the 
welfare  of  other  cities  than  their  own;  but  large  or  small,  they 
pray  that  the  example  of  improved  home  conditions  may  be  of 
some  worth  in  promoting  a  nation-wide  process  of  orderly,  dis- 
interested, thorough  analysis  of  complex  social  situations  as  a 
basis  for  constructive  state  and  municipal  action — action  aimed 
to  promote  the  well-being  of  the  plain  folks  whose  numbers  are 
legion,  and  for  whom  the  fellow  townsmen  and  predecessor  of 
this  Springfield  committee  two  generations  ago  so  forcefully 
spoke. 


29 


Pamphlet   Publications  of  the  Department  of 

Surveys  and   Exhibits,  Russell  Sage 

Foundation,  New  York  City 

Prices  indicated  below  are  charged  to  help  meet  the  cost  of  printing 
and  mailing,  and  thus  make  possible  a  wider  distribution  of  publications. 

SE  I  THE  SOCIAL  SURVEY.  Paul  U.  Kellogg,  Shelby 
M.  Harrison,  et  al.  52  pp.     (Out  of  print.) 

SE  2      THE  NEWBURGH  SURVEY.     104  pp.  15  cts. 

SE  2c  THE  RELATION  OF  THE  SOCIAL  SURVEY  TO 
THE  PUBLIC  HEALTH  AUTHORITIES.  Franz 
Schneider,  Jr.    2  pp.  2  cts. 

THE  TOPEKA  IMPROVEMENT  SURVEY;   in  four 
parts: 

Public  Health.    98  pp.  25  cts. 

Delinquency  and  Corrections.    64  pp.  15  cts. 

Municipal  Administration.    43  pp.  15  cts. 

Industrial  Conditions.     56  pp.  15  cts. 
THE  SPRINGFIELD  (ILL.)  SURVEY;  in  ten  parts: 

Public  Schools.     152  pp.  25  cts. 

Care  of  Mental  Defectives,  etc.    46  pp.  15  cts. 

Recreation.     133  pp.  25  cts. 

Housing.    24  pp.  15  cts. 

The  Charities  of  Springfield.     185  pp.  25  cts. 

Industrial  Conditions.     173  pp.  25  cts. 

City  and  County  Administration.  25  cts. 

Public  Health  of  Springfield.     159  pp.  25  cts. 

Correctional  System.     185  pp.  25  cts. 

Springfield:  The  Survey  Summed  Up.  25  cts. 

SE  17  THE  DISPROPORTION  OF  TAXATION  IN  PITTS- 
BURGH: Summary  of  findings  of  taxation  inves- 
tigation of  the  Pittsburgh  Survey.  Shelby  M. 
Harrison.     15  pp.  10  cts. 

SE  18  AN  EFFECTIVE  EXHIBITION  OF  A  COMMUN- 
ITY SURVEY:  A  brief  description  of  the  Spring- 
field Survey  Exhibition  (reprint  from  the  American 
City).     6  pp.  5  cts. 

SE  19  A  SURVEY  OF  THE  PUBLIC  HEALTH  SITU- 
ATION, ITHACA,  N.  Y.  Franz  Schneider,  Jr. 
34  pp.  20  cts. 

SE  20  DEPARTMENT  OF  SURVEYS  AND  EXHIBITS, 
RUSSELL  SAGE  FOUNDATION,  Activities 
and  Publications.     11  pp. 

SE  21  SURVEY  OF  THE  ACTIVITIES  OF  MUNICIPAL 
HEALTH  DEPARTMENTS  IN  THE  UNITED 
STATES.     Franz  Schneider,  Jr.     21  pp.  20  cts. 

^  SE  22     BIBLIOGRAPHY  OF  THE  SOCIAL  SURVEY.   16  pp.  sets. 

SE  23     COMMUNITY    ACTION    THROUGH    SURVEYS. 

Shelby  M.  Harrison.     30  pp.  10  cts. 

SE  24     RELATIVE  VALUES  IN  PUBLIC  HEALTH  WORK. 

Franz  Schneider,  Jr.     10  pp.  10  cts. 


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16 

Russell  Sage  Foundation  PubGcations 

Complete  List  of  Books  Now  in  Stock.     All  Prices  Postpaid 


Almshouse,  The.  By  Alexander  Johnson. 
Illus.     X,  263  pp.     Price  $1.25. 

Artificial  Flower  Makers.  By  Mary  Van 
Kleeck.     Illus.     xix.  261  pp.     Price  $1.50. 

Care  and   Education   of   Crippled   Children. 

By   Edith   Reeves.     Illus.    xi,   252   pp.     Price 
$2. 
Carrying  Out  the  City  Plan.     By  Shurtleff  & 
Olmsted,     ix,  349  pp.     Price  $2. 

Child  Welfare  Work  in  California.  By  Wil- 
liam H.  Slingerland.  Illus.  xx,  248  pp.  Price 
$1.50. 

Child    Welfare    Work    in    Pennsylvania.     By 

William  H.  Slingerland.     Illus.    xviii,  352  pp. 
Price  $2. 

Civic  Bibliography  for  Greater  New  York.     By 

James  Bronson  Reynolds,     xvi,  296  pp.     Price 
$1.50. 
Co-operation    in    New    England.     By    James 
Ford,    xxi,  237  pp.     Price  $1.50. 


CORRECTION  AND  PREVENTION  SERIES: 
4  Vols. 

Edited  by  C.  R.  Henderson. 
Prison  Reform  and  Criminal  Law.     By  Wines, 
Sanborn,  Brockway  and  others.     Illus.     xxxiii, 
287  pp.     Price  $2.50;  postpaid  $2.66. 

Criminal  Law  in  the  United  States.  Part  2 
of  Vol.  I.  By  Eugene  Smith,  vii,  119  pp. 
Price  $1;  postpaid  $1.10. 

Penal     and     Reformatory     Institutions.     By 

Sylvester,  Spalding  and  others.     Illus.     x,  345 
pp.     Price  $2.50;  postpaid  $2.70. 

Preventive  Agencies  and  Methods.  Edited  by 
C.  R.  Henderson,  ix,  439  pp.  Price  $2.50; 
postpaid  $2.68. 


Cottage    and    Congregate    Institutions.     By 

Hastings  H.   Hart.     Illus.     xii,   136  pp.     Price 
$1. 

Delinquent  Child  and  the  Home.  By  Breck- 
inridge &  Abbott.     X,  355  pp.     Price  $2. 

Elements  of  Record  Keeping  for  Child-helping 
Organizations.  By  Georgia  G.  Ralph,  xii, 
195  pp.     Price  $1.50. 

Fatigue  and  Efficiency.  By  Josephine  Gold- 
mark,     xiv,  342  pp.     Price  $2. 

Fifty  Years  of  Prison  Service.  By  Zebulon 
R.  Brockway.     Illus.     xiii,  437  pp.     Price  $2. 

Housing  Reform.  By  Lawrence  Veiller.  xii, 
213  pp.     Price  $1.25. 

Juvenile  Court  Laws.     By  Hastings  H.   Hart. 

vu,  150  pp.     Price  $1,50;   postpaid  $1.60. 
Laggards  in  Our  Schools.     By  Leonard  P.  Ayres. 

XV,  336  pp.     Price  $1.50. 

Longshoremen,  The.  By  Charles  B.  Barnes. 
Illus.     XX,  287  pp.     Price  $2. 

Medical  Inspection  of  Schools.  By  Gulick 
&  Ayres.     Illus.    xx,  224  pp.     Price  $1.50. 


Model  Housing  Law.  By  Lawrence  Veiller. 
viii,  343  pp.     Price  $2. 

One  Thousand  Homeless  Men.  By  Alice  Wil- 
lard  Solenberger.  Illus.  xxiv,  374  pp.  Price 
$1.25. 

Outdoor  Relief  in  Missouri.  By  George  War- 
field,    ix,  140  pp.     Price  $1. 

THE  PITTSBURGH  SURVEY: 
6  Vols. 

Edited  by  Paul  U.  Kellogg. 
Women  and  the  Trades.     By  Elizabeth  B.  But- 
ler.    Illus.     440    pp.     Price     $1.50;      postpaid 
$1.72. 

Work-Accidents  and  the  Law.  By  Crystal 
Eastman.  Illus.  xvi,  335  pp.  Price  $1.50; 
postpaid  $1.72. 

Homestead;  The  Households  of  a  Mill  Town. 

By  Margaret  F.  Byington.     Illus.     xv,  292  pp. 
Price  $1.50;  postpaid  $1.70. 

Steel  Workers,  The.  By  John  A.  Fitch.  Illus. 
xiii,  380  pp.     Price  $1.50;  postpaid  $1.73. 

Pittsburgh  District,  The.  By  Devine,  Woods, 
Commons  and  others.  Illus.  xviii,  554  pp. 
Price  $2.50;   postpaid  $2.75. 


Wage-Earning  Pittsburgh. 

mons,   Kelley  and  others. 
Price  $2.50;  postpaid  $2.75. 


By  Kellogg,  Com- 
lUus.    XV,  582  pp. 


Saleswomen  in  Mercantile  Stores.  By  Eliza- 
beth B.  Butler.  Illus.  xv,  217  pp.  Price  $1; 
postpaid  $1.08. 

San  Francisco  Relief  Survey.  By  McLean, 
O'Connor  and  others.  Illus.  xxv,  483  pp. 
Price  $3.50. 

Social  Work  in  Hospitals.  By  Ida  M.  Cannon, 
xii,  257  pp.     Price  $1.50. 

Visiting  Nursing  in  the  United  States.     By 

Yssabella  Waters.     377  pp.     Price  $1.25. 

Wider  Use  of  the  School  Plant.  By  Clarence 
A.  Perry.     Illus.     xiv,  423  pp.     Price  $1.25. 

WEST  SIDE  STUDIES: 
2  Vols. 

Edited  by  Pauline  Goldmark. 
Boyhood    and    Lawlessness;     The    Neglected 
Girl.     Part  2  by  Ruth  S.  True.     Illus.    xxii, 
358  pp.     Price  $2. 

Middle  West  Side;   Mothers  Who  Must  Earn. 

Part  1  by  Otho  G.  Cartwright;   Part  2  by  Kath- 
arine Anthony.     Illus.     xvi,  296  pp.     Price  $2. 


Women  in  the  Bookbinding  Trade.     By  Mary 
Van  Kleeck.     Illus.     xx,  270  pp.     Price  $1.50. 

Working  Girls  in  Evening  Schools.     By  Mary 
Van  Kleeck.     Illus.     xi,  252  pp.     Price  $1.50. 

Workingmen's     Insurance     in     Europe.     By 

Frankel  &  Dawson,     xviii,  477  pp.     Price  $2.50; 
postpaid  $2.70. 


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